PROG IAL RAM EC M SP E / REPATRIATION, REINTEGRATION AND LOCAL SETTLEMENT

AT A GLANCE

Main Objectives and Activities Guatemala: Complete organised repatriation by 30 , and provide relief packages to families returning individually; monitor negotiations for the purchase of collective farms in Guatemala; complete quick impact projects (QIPs) for rein- tegration by , and support small-scale projects in communities which have received returnees during the past two years; help returnees obtain adequate documentation; strengthen returnee organisations and women's involvement in community life; and continue to create and strengthen linkages with other national and international organisations to increase the stability and long-term sustainability of returnee communities.

Mexico: Facilitate the naturalisation of eligible Guatemalan refugees, and ensure proper legal documentation for all refugees; provide basic support for the infrastructure of communities settled on undisputed land, and incorporate education and health services into the national system; support a community-based credit scheme to help refugees increase their income; facilitate the access of refugees to land ownership; and implement a comprehensive community-based training programme to enhance integration.

Persons of Concern Income and Expenditure (USD) MAIN REFUGEE ORIGIN/ TOTAL IN OF WHICH: PER CENT PER CENT WORKING INCOME FROM OTHER FUNDS TOTAL FUNDS TOTAL LOCATION COUNTRY UNHCR-ASSISTED FEMALE < 18 BUDGET* CONTRIBUTIONS AVAILABLE** AVAILABLE EXPENDITURE*

Guatemalan Refugees ()* 12,400 11,666 50 60 2,457,769 1,320,771 1,105,984 2,426,755 2,380,207 Guatemalan Refugees () 5,670 5,664 49 61 Guatemalan Refugees (Q. Roo) 2,435 2,435 49 70 * Includes costs at Headquarters. Returned in 1999** (Guatemala) 2,036 2,036 49 61 ** Includes opening balance and adjustments.

* Figure does not include 2,209 refugees living in various locations in Chiapas who did not benefit from UNHCR’s assistance. ** Since repatriation began, a total of 43,700 have returned to their home with UNHCR’s assistance.

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Impact • Organised repatriation to Guatemala was successfully concluded in . By the end of the year, UNHCR had assisted a total of 2,036 persons to return to their homes. • A total of 15 QIPs and 24 small-scale interventions were completed (such as the provision of corn grind- ing mills and the improvement of water systems and health posts). • Community-based organisations were strengthened through training and organisational support. Educational promoters were trained and integrated into the national education system. Local women’s groups were helped with outreach work in returnee communities. • UNHCR facilitated contacts between the returnees, the and NGOs, and advocated the inclu- sion of returnee communities in national and regional plans. The Office worked closely with the Comisión Técnica para la Ejecución del Acuerdo de Reasentamiento (CTEAR) to formulate recommendations for devel- opment-oriented agencies. • , UNHCR facilitated the integration and legal or naturalisation of Guatemalan refugees. A total of 1,544 Guatemalan refugees in Campeche and became Mexican citizens. In addi- tion, 4,877 refugees had their migration documents renewed in Chiapas. • In Campeche and Quintana Roo, all seven refugee settlements were officially recognised as Mexican vil- lages, and local municipal authorities were established through . All 12 communal credit schemes were systematically registered, which gave members full access to other Mexican credit institutions. • In Chiapas, the authorities assumed responsibility for all basic health and education services in the refugee settlements. Some support was provided for infrastructure in settlements on undisputed land. Some 93 sav- ings groups were created under a micro-credit savings scheme. Refugees were able to purchase plots of land as a result of the Government’s decision to allow them to settle permanently where they had been living in Chiapas.

WORKING ENVIRONMENT In Mexico, the Government was committed to, and co- operated in, the integration of Guatemalan refugees. The Context The continuing political tension in Chiapas had lit- After three decades of civil war in Guatemala, which tle effect on the integration programme. In Campeche forced tens of thousands of refugees to flee to Mexico's and Quintana Roo, naturalisation enabled refugees to southern states of Chiapas, Campeche and Quintana enjoy equal rights with nationals. With the recogni- Roo, the signing in 1996 of Peace Accords brought rel- tion of seven former refugee settlements as Mexican ative stability to the country. Thanks to the co- villages, the refugee population was able to integrate operation and generosity of the Guatemalan and successfully into state programmes and development / MEXICO GUATEMALA Mexican , refugees who remained in plans. Mexico at the end of 1998 were in the unique position of being able to choose between two equally sound Constraints durable solutions: repatriation to their homes in In Guatemala, the devastation caused by Hurricane Guatemala or local integration in Mexico. Mitch, and the presidential campaign (in the run-up to the elections) caused the Government UNHCR’s repatriation and reintegration programme and the international community to pay less attention in Guatemala has been conducted within the larger to the needs of returnee communities. context of the 1996 Peace Accords. The rejection of constitutional reforms in a 1999 referendum signalled In Mexico, refugee communities in some areas expe- a setback for the peace process, but the newly elected rienced problems due to the uncertainty of land tenure, President continued to affirm the Government's com- shaky relations with local communities and technical mitment to peace. Due to an improved incentive pack- difficulties in the provision of basic services. age for individual returnees, their number (2,036) sig- nificantly exceeded UNHCR’s initial forecast of 300 Funding persons. This unexpected increase made it necessary As in the past few years, substantial budget cuts forced to revise the budget, identify areas where savings could UNHCR to carry out a series of drastic reductions in be made, and closely monitor expenditure. Relief mate- the integration programme in Mexico. These reduc- rials were donated by the Guatemalan Government to tions affected the pace and impact of the programme, help cope with the larger number of returnees. and left some refugee communities on newly acquired

UNHCR GLOBAL REPORT 1999 Page 373 SPECIAL PROGRAMME land devoid of road access, sufficient water or sanitary In Chiapas, 33 women’s committees (550 participants) facilities. were trained in leadership skills, women’s rights and the prevention of , and another 160 women leaders participated in regional workshops. A ACTIVITIES AND IMPACT Community Services Committee identified 150 vul- nerable individuals, and 90 people were referred to Protection and Solutions appropriate institutions. Widows received support to Personal documentation has historically been a criti- improve or build shelters, and other vulnerable refugees cal issue for Guatemalans whether as returnees or attended gardening courses. UNHCR launched two refugees. As a result of good co-operation with both projects to promote children’s rights, one of them the Guatemalan and Mexican authorities, 96 per cent involved the production of a radio programme which of the returnees in Guatemala are now registered, and was translated into indigenous languages. UNHCR 95 per cent of the refugee population in Mexico has supported a feasibility study for the electrification of been registered and provided with documentation. three returnee communities (to benefit more than The transfer of ownership of land in Campeche and 200 families). Quintana Roo proved to be more complex than expected, as many refugees settled on land whose own- Crop Production: In Guatemala, UNHCR organised ership is constitutionally restricted to nationals. training in coffee-growing techniques and facilitated UNHCR therefore concentrated on the naturalisa- closer co-operation between the National Coffee tion process and only five per cent of the refugee pop- Association and some of the later returnee settle- ulation (who either left the settlements or chose not ments. Three agricultural projects were supported with to become Mexican citizens) have not benefited from equipment, seeds and low-tech machinery, benefiting this option. 900 people (439 of them women). Working together with several community-based women’s associations, With the support of local NGOs and UNHCR, UNHCR set up three corn grinding mills, which sig- Guatemalan refugee women founded a number of nificantly reduced the workload and, in addition, pro- women’s organisations while in exile in Mexico, start- vided a small income. Three QIPs supported the cul- ing in 1992. These organisations brought about posi- tivation of , cocoa and coffee. tive changes for refugee women there by providing them with labour-saving devices (such as corn mills for mak- Domestic Needs/Household Support: Women’s organ- ing tortillas), creating income-generating projects, isations in Guatemala were involved in the distribu- and providing information on women’s rights, repro- tion of toiletries and cutlery. All individual returnees ductive health and training. Once these women received a cash grant (USD 50 for adults and USD 25 returned to Guatemala, a strategy was devised whereby for children under 14). An additional cash grant (USD the (male-dominated) refugee organisations and 350-500 depending on family size) was given to fam- UNHCR signed a document affirming their wish to ilies returning individually, which facilitated the pur- make men and women equal owners of the lands under chase of small plots of land and enabled the launch of negotiation. This document was subsequently made small-scale productive activities. UNHCR ensured public in a conference at which the authorities were that this assistance benefited women and men equally. asked to formally respond to the women's request to In Campeche and Quintana Roo, relocated families be included as co-owners. After protracted negotiations received nine monthly grants to cover their basic between the parties, co-ownership for refugee couples needs until they entered the local labour market, or was achieved. until the first harvest. The amount depended on fam- ily size and ranged from USD 36 to USD 120. Assistance and Activities Communities moving to Chiapas also received personal Community Services: Women’s organisations in var- hygiene items. ious communities in Guatemala were strengthened through training in the creation of support groups, Education: UNHCR provided basic school supplies for prevention of domestic violence, rights and con- over 1,300 children in primary schools in Guatemala. flict resolution. The Office provided computer equip- All the and primary schoolteachers among ment and training to organisers, and assisted in setting the returnees had previously been supported by NGOs: up income-generating activities and a day-care centre. now they were trained and certified, allowing their ser-

UNHCR GLOBAL REPORT 1999 Page 374 SPECIAL PROGRAMME vices to become a part of the national education sys- cent women) to obtain credits from Mexican institu- tem. In Campeche and Quintana Roo, UNHCR tions. A small study showed that participation in the funded scholarships for lower and higher secondary schemes led to an increase in economic resources and academic studies as well as vocational training. In opportunities, mainly at the household level, and an Chiapas, responsibility for 23 schools was officially increase in self-esteem among women. In Chiapas, transferred to the authorities in . Following the credit and savings programme developed in 1998 a 1998 study that revealed that 50 per cent of the did not yield sufficient results so it had to be redesigned. returnee population was illiterate, an ambitious literacy campaign was launched in 1999. The success rate was Legal Assistance: In Guatemala, UNHCR facilitated substantially lower than expected due to inadequate the documentation of 2,937 returnees who arrived planning and insufficient local implementing expe- between July 1998 and June 1999. Staff at 70 Civil rience. The question of literacy training will be Registries benefited from legal training seminars and reassessed in 2000. four Civil Registries were computerised. A handbook of regulations governing documentation was published Food: Food and water was provided for returnees while and 1,800 copies were distributed to Civil Registries. in transit. WFP also provided food rations for the first Returnee communities were also assisted to obtain nine months after return. Guatemalan refugees inte- the right to cross land belonging to neighbouring land- grating in Chiapas received a five-month food ration, lords. In Campeche and Quintana Roo, a total of which concluded the food assistance programme. 2,184 naturalisation cards have been issued to date Special additional food was provided by UNHCR (1,544 of them in 1999). In Chiapas, a total of 3,072 throughout the year for malnourished children and resident visas were issued and 1,805 visas were renewed. expectant or nursing mothers. UNHCR also provided documentation to “dispersed refugees” (non-assisted refugees living outside the set- Fisheries and Forestry: UNHCR funded environ- tlements). Workshops were conducted on the use of mental projects in six returnee communities in a handbook on integration, highlighting the rights Guatemala. In Chiapas, one fishery project and sev- and obligations of Mexican citizens. These were eral tree nursery sites were maintained. Because of attended by both men and women (including more their positive impact on both the environment and the than 600 women). Local institutions, which helped co- refugees’ income, UNHCR plans to transfer these pro- ordinate the training sessions, will provide follow-up jects to public environmental agencies. courses.

Health/Nutrition: Returnees had access to medical Livestock: UNHCR funded a women's group to estab- GUATEMALA / MEXICO GUATEMALA assistance during repatriation and for one month upon lish a small-scale chicken-breeding project in return to Guatemala. Temporary clinics were estab- Guatemala for the benefit of 70 families. lished and basic equipment and medical supplies were purchased. In Campeche and Quintana Roo, health ser- Operational Support (to Agencies): UNHCR covered vices were smoothly handed over to the Ministry of the administrative costs of five implementing part- Health. In addition, orthopaedic equipment was pur- ners. These included: salaries; office rental; utilities; chased for the General Hospital in Campeche as a final maintenance of premises; communications; office sup- contribution. In Chiapas, all remaining health ser- plies; fuel; maintenance and insurance of vehicles; vices were transferred to the State. UNHCR contin- and travel expenses. All implementing partners pro- ued to support reproductive and midwifery vided audit certificates. A series of highly constructive courses. Nine community health posts were set up; their workshops were conducted on lessons learned. services are of greatest benefit to refugee women and children. Sanitation: Forty emergency latrines (20 of them designed for women) were constructed in two collec- Income Generation: UNHCR monitored long-stand- tive return sites. To avoid the spread of communica- ing micro-credit schemes for local and returnee pop- ble diseases, two garbage pits were also dug. ulations run by local NGOs in Guatemala. Most ben- eficiaries were women. In Campeche and Quintana Shelter/Other Infrastructure: Upon arrival in Roo, 12 credit schemes in the settlements were offi- Guatemala, each individually returning family received cially registered, enabling their 651 members (53 per a package containing raw materials and hand tools as

UNHCR GLOBAL REPORT 1999 Page 375 SPECIAL PROGRAMME well as a grant for the purchase of timber. For families co-ordination was limited to monitoring individual returning collectively, UNHCR built temporary shel- repatriation. ters and provided 24 meters of rugged plastic sheeting for community structures. For refugee families relocating Working with Others in Campeche and Quintana Roo, UNHCR provided An Inter-agency Group for Uprooted Populations was up to USD 530 to cover dwelling /repairs created in Guatemala by UNDP, the UN Human Rights and an additional technical package worth USD 270. Verification Mission in Guatemala (MINUGUA), The latter grant significantly accelerated the integra- UNHCR and IOM. Other agencies such as UNESCO, tion process by facilitating the clearance and prepa- UNICEF and WHO participated in theme groups. ration of farming plots. In Chiapas, UNHCR focused UNHCR and WFP conducted a joint food security on providing basic infrastructure for what had previ- evaluation in July. Families with insufficient food were ously been temporary refugee communities. A total of included in WFP’s food-for-work projects. UNICEF and 121 projects were undertaken for 1,816 families in 42 UNHCR supported a study on the impact of docu- settlements: 13 water systems; four sanitation projects; mentation and registration of newborn babies in two five electrical supply systems; seven health posts; 66 returnee . In Campeche and Quintana classrooms; 19 other community projects and seven Roo, a handbook on integration was produced jointly rural development studies. by UNHCR, UNICEF, Comisión Mexicana para ayuda a los refugiados (COMAR), and CONMUJER. Transport/Logistics: UNHCR successfully organised the transportation of 2,000 returnees to Guatemala by In Guatemala, UNHCR worked with two govern- hiring 195 buses. Five buses and 12 trucks were rented ment agencies and 21 NGOs and eight other partners. to provide transport for 86 refugee families who Most small-scale projects and QIPs contained a capac- requested to be relocated from Chiapas to Campeche ity-building element to ensure their sustainability. In or Quintana Roo. In Chiapas, 17 refugee communities addition, five initiatives were based on “lessons received help from UNHCR with transport to new plots learned”, involving NGOs and other bodies. UNHCR of land. worked with six NGO partners in Chiapas. In Campeche and Quintana Roo, where NGO presence Water: In Guatemala, two communities benefited was weak, UNHCR continued to support and train an from the construction of potable water systems. Three NGO run by refugees, responsible for the implemen- QIPs initiated in 1998 were completed for the bene- tation of credit schemes. In view of serious doubts about fit of 1,523 returnees. the ability of NGOs to remain viable without assistance, UNHCR continued to encourage the search for alter- native sources of funding. ORGANISATION AND IMPLEMENTATION

Management OVERALL ASSESSMENT Due to budget reductions, several posts in Guatemala were terminated earlier than planned, leaving two To hasten integration, UNHCR encouraged maxi- international and five national staff for much of the mum refugee and returnee participation in QIPs in year. The office was closed at the end Guatemala and in credit schemes in Mexico. The of June. In Mexico, the office in Campeche was closed Office continuously emphasised the importance of on 31 December. Staff in the two remaining offices in women’s rights through training and capacity-building. and Comitán consisted of eight interna- This had a positive impact on equal access to legal doc- tional staff, two JPOs, three UNVs, three national umentation for men and women. officers and 16 national staff. were more easily recognised as co-owners of land and could be registered as economically independent indi- UNHCR’s offices in Mexico and Guatemala contin- viduals, free to participate in credit associations and ued to closely co-ordinate the voluntary repatriation productive projects. operation, particularly logistics and monitoring. Co- ordination with the office in facilitated the Budget cuts had a negative effect on UNHCR's work repatriation of 38 Guatemalans in a single convoy. in both countries. In retrospect, UNHCR should have With the completion of organised repatriation in July, revised its long-term plans earlier and begun creating

UNHCR GLOBAL REPORT 1999 Page 376 SPECIAL PROGRAMME linkages with other organisations sooner. The Office could also have improved its effectiveness and efficiency by working with fewer partners, particularly in Mexico. The involvement of the private sector in reintegration Offices activities in Guatemala proved important, and could GUATEMALA possibly have reduced UNHCR’s input earlier. Huehuetenango (closed 30 June 1999)

Despite efforts by UNHCR and other agencies to pro- MEXICO mote sustainable reintegration of the returnee popu- Mexico City Comitán lation in Guatemala, a number of problems still require Campeche (closed 31 December 1999) the attention of the Government, donors and NGOs. They include: further support and capacity-building for Partners community organisation (particularly for women); GUATEMALA legalisation on land tenure in returnee communities Government Agencies National Commission for the Attention of Repatriates, to ensure women’s access to land; longer-term sup- Refugees and Displaced (CEAR) for agricultural projects; further improvements Technical Commission for the Verification of the to in areas of return; access to employ- Resettlement Peace Accord (CTEAR) ment opportunities in areas where agricultural pro- NGOs duction is limited; and attention to children’s and Asociación de Apoyo Integral Asociación de Mujeres MADRE TIERRA adolescents’ needs. A number of returnee communi- Asociación guatemalteca pro agua y saneamiento ties are still fragile and will continue to suffer the con- Asociación IDEAS sequences of the gap between reintegration assistance Asociación Nacional de Mujeres Guatemaltecas IXMU- CANE (UNHCR plans to cease its reintegration activities in Asociación para la promoción y el desarrollo de la comu- Guatemala as of mid-2001) and longer-term develop- nidad Asociación y unidad para el desarrollo autosostenible ment initiatives. Capacitación y Desarrollo Comunitario Centre Canadien d’Etudes et de Coopération In Chiapas, some services have been handed over to Internationale Conferencia de Religiosos de Guatemala returnee communities (such as health, education and Cooperación Mesoamericana para el Desarrollo y la Paz literacy programmes) while others are considered to fall Grupo Guatemalteco de Mujeres Médecins du Monde ( and ) within the remit of the State. Barring unforeseen Médecins Sans Frontières (France, and Spain) developments, UNHCR’s integration programme in Niños Refugiados del Mundo Chiapas will conclude at the end of 2001. In Campeche Organización de Mujeres Guatemaltecas MAMA MAQUIN Pastoral Social / MEXICO GUATEMALA and Quintana Roo, UNHCR’s projects are scheduled Paz y Tercer Mundo to cease by the end of 2000. Mexican authorities have Other already assumed responsibility for public services and Asesoría y consultoría en ingeniería, agronomía y arqui- seven settlements are officially registered as Mexican tectura villages. Community authorities have been elected Asociación Nacional del Café Consultores agrícolas and refugees are generating enough income to reach Diseño y construcciones integrales a standard of living similar to that of their Mexican Empresa de Desarrollo y Servicios GSD Consultores Asociados neighbours. The only outstanding issue is the finali- Instituto Nacional de Cooperativas sation of the naturalisation process, and the transfer Servicios y Telecomunicaciones, S.A. of ownership of 19,000 hectares of land to the refugee MEXICO community. Government Agencies Commission for Assistance to Refugees Administracion RH SA

NGOs Capacitación y Asesoria en Medio Ambiente y Defensa del Derecho a la Salud Capacitación y Desarollo Comunitario Desarollo Sustentable para la Mujer y la Niñez Investigación y Desarollo Femenino Promoción de Servicios Comunitarios de Mujeres Pro Derechos de Educacion y Salud Sin

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Voluntary Contributions (USD)

Donor Income Contribution 544,218 544,218 France 81,786 81,786 180,000 180,000 337,136 337,136 168,840 168,840 España con ACNUR (SPA) 8,791 0

TOTAL 1,320,771 1,311,980

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Financial Report (USD)

Current Year’s Projects Programme Overview notes

Opening Balance 789,801 (1) Income from Contributions 1,320,771 (1) Other Funds Available 316,183 Total Funds Available 2,426,755 (5) Expenditure 2,380,207 (1) (5) Closing Balance 46,548 (1) (5)

Prior Years’ Projects Expenditure Breakdown notes Protection, Monitoring and Coordination* 728,082 7,407 Community Services 48,505 2,500 Crop Production 117,342 99,293 Domestic Needs / Household Support 192,413 19,894 Education 27,000 5,767 Food 36,932 24,940 Forestry 5,628 (40) Fisheries 0 0 Health / Nutrition 25,746 6,532 Income Generation 5,839 8,171 Legal Assistance 67,176 45,820 Livestock 0 1,207 Operational Support (to Agencies) 223,242 117,169 Sanitation 3,491 10,769 Shelter / Other Infrastructure 70,191 79,226 Transport / Logistics 295,548 75,838 Water 30,527 34,394 Instalments with Implementing Partners 19,522 (449,557) Sub - total Operational 1,897,184 89,330 Administrative Support* 220,752 0 Sub - total Disbursements/Deliveries 2,117,936 (5) 89,330 (6) Unliquidated Obligations 262,271 (5) 0 (6) TOTAL 2,380,207 (1) (5) 89,330

Instalments with Implementing Partners Payments Made 1,243,693 105,754 Reporting Received 1,224,171 555,311 Balance 19,522 (449,557) Outstanding 1 January 0 610,612 / MEXICO GUATEMALA Refunded to UNHCR 0 203,133 Currency Adjustment (4,637) (5,473) Outstanding 31 December 14,885 (47,551)

Unliquidated Obligations Outstanding 1 January 0 220,692 (6) New Obligations 2,380,207 (1) (5) 0 Disbursements 2,117,936 (5) 89,330 (6) Cancellations 0 131,362 (6) Outstanding 31 December 262,271 (5) 0 (6)

* Includes costs at Headquarters. Figures which cross reference to accounts (1) Annex 1 to Statement 1 (5) Schedule 5 (6) Schedule 6

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